Table of Contents

As a policy framework, Canada's Oceans Strategy has the overarching
goal – to ensure healthy, safe and prosperous oceans for the benefit
of current and future generations of Canadians.

The policy framework is intended to guide the co-ordination and management
of ocean activities. All levels of government retain respective legislative
and jurisdictional responsibilities and authorities.

Principles

As set out in the Oceans Act, the Strategy is based
on the three principles of sustainable development, integrated
management and the precautionary approach. These
three principles should guide all ocean management decision making.

Application of these principles is premised on a sound base of scientific
and traditional knowledge. The scientific knowledge required to make oceans
management decisions encompasses both natural and social dimensions. It
is derived from sources inside and outside Canada and its governments.
Under the Strategy, the Government of Canada commits to ensuring
that the following principles serve as guides and tests for assessing
future oceans management decisions.

The sustainable development principle rests at the
core of Canada's Oceans Strategy. It recognizes the need for
integration of social, economic and environmental aspects of decision
making, and that any current and future ocean resource development must
be carefully undertaken without compromising the ability of future generations
of Canadians to meet their needs.

While this principle applies to all oceans management considerations,
from an operational perspective, this Strategy commits the Government
of Canada to ensure its implementation through the process of integrated
management planning. (Implementation details are available in the Policy
and Operational Framework for Integrated Management of Estuarine, Coastal
and Marine Environments in Canada).

As a principle, Integrated Management is a commitment
to planning and managing human activities in a comprehensive manner while
considering all factors necessary for the conservation and sustainable
use of marine resources and the shared use of ocean spaces.

Integrated Management is central to Canada's Oceans Strategy,
as it contains commitments to the long-term objective of developing large-scale
and local Integrated Management plans for all of Canada's oceans,
starting with priority areas and building on experience as resources and
capacity permit.

Integrated Management also embodies several other important principles,
concepts and approaches, such as:

integrated data collection, monitoring, research, synthesis, and
information sharing, communication and education (the full range of
relevant knowledge is applied to the planning process and decision-making
process, including scientific studies and local and traditional knowledge);

flexible and adaptive management techniques to deal with uncertainty
and improvements in the understanding of marine species and ecosystems;
and

planning on the basis of natural and economic systems together, rather
than principally on political or administrative boundaries (Integrated
Management plans may include more than one province or territory or
span international boundaries).

The precautionary approach, defined in the Oceans Act
as "erring on the side of caution," is a key principle to be applied
in the management of ocean activities. Under the Strategy, the Government
of Canada is re-affirming its commitment to promoting the wide application of
the precautionary approach to the conservation, management and exploitation
of marine resources in order to protect these resources and preserve the marine
environment. Canada's Oceans Strategy will be governed by the ongoing
policy work being undertaken by the Government of Canada.
Further commitments in this Strategy clarify the application of this principle
from an oceans perspective, namely:

the promotion of an ecosystem-based approach to management;

the application of conservation measures necessary to maintain biological
diversity and productivity of the marine environment, including the
establishment of marine protected areas;

the promotion of progressive improvement in understanding of the marine
environment; and

the priority given to maintaining ecosystem health and integrity,
especially in the case of uncertainty.

Objectives

Three policy objectives or outcomes have been identified for the advancement
of oceans management activities:

Understanding and Protecting the Marine Environment;

Supporting Sustainable Economic Opportunities;
and

International Leadership.

Understanding and Protecting the Marine Environment

Successful oceans management depends on understanding the marine
environment – an understanding that is predicated on solid
science, which in turn depends on rigorous peer review. The ability to
understand and protect marine ecosystems also depends on the ability to
bring together the various disciplines of the marine sciences.

Science support for oceans management is important for delineating ecosystem
boundaries, identifying key ecosystem functions and components, developing
predictive models and risk assessment techniques, developing ecosystem-based
management objectives, developing performance indicators, and assessing
the state of ecosystem health. Modern oceans management requires integrating
social and environmental information so that human activity is better
factored into sound decision-making.

Other key information sources include the federal marine fleets, the
fishing industry, community knowledge, and the traditional ecological
knowledge shared by Aboriginal peoples.

Integrating diverse and complex information, supplemented by new research
to improve understanding of the marine environment (particularly of marine
ecosystems), contributes to the advancement and management of oceans resources.
Sharing that knowledge with the Canadian public is an important element
of enhancing public awareness and engaging public debate.

Protecting the marine environment is the corollary of improved
understanding of the marine environment. The broadly defined stewardship
responsibility is designed to ensure that resources of the oceans are
managed wisely, respect the stated principles, and protect oceans for
the benefit and enjoyment of future generations. Protection must consider
the degradation of the marine environment including, physical alteration
and destruction of marine habitat.

Pollutants entering the oceans are also a major concern. Over 80 per
cent of marine pollution is from land-based sources. Sea-based sources
of marine pollution also warrant additional attention and action.

There are also unique, sensitive, and ecologically significant areas
of the marine environment that require special protection and remediation.
Recovery is urgent for marine species currently threatened or endangered,
and for actions that keep healthy populations from becoming at risk.

The understanding and protection sections of the policy framework support
the creation of a national network of marine protected areas and the establishment
of marine environmental quality guidelines. These are two specific elements
set out in the Oceans Act.

Achieving this objective, however, is much more than just establishing
new programs. It requires new approaches to collaboration across and between
governments, as well as new ways of doing business for those using oceans
resources and the active engagement of Canadian communities, organizations,
and citizens. (These aspects are discussed in greater detail in the subsequent
section on Oceans Governance).

Supporting Sustainable Economic Opportunities

The conservative estimate of ocean industries' contribution to
the Canadian economy is well over $20 billion a year. There is a very
strong link between the sustainable economic opportunities objective,
and that of understanding and protecting the marine environment. The health
of the oceans is inextricably linked to the sustainability of economic
livelihoods for coastal communities and Canadians generally. Support for
sustainable economic opportunities also requires the development of a
scientific knowledge base of oceans resources and development impacts.
Under the Strategy, the Government of Canada will work with other
levels of government, Aboriginal groups, industry and oceans stakeholders
to develop this knowledge base and assess the economic potential for development.
At the same time, the social, cultural and environmental impacts of development
will be considered.

The conservation and sustainable use of fisheries resources
is one of the key goals within this objective. So too is the development
of aquaculture in a manner that supports public confidence
and industry competitiveness. Fisheries managers and scientists are developing
a renewed approach toward management that is based on conservation, objectives-based
fisheries management techniques within an ecosystems context. This requires
working more closely with commercial, recreational and Aboriginal licence
holders and fleet sectors to promote greater involvement in, and responsibility
for, operational management activities.

Offshore energy and mineral resource development are
already contributing to the prosperity of Canada, and have enormous potential.
In addition to being an important element of the overall energy supply
and energy policy, offshore energy developments are directly and indirectly
helping to transform economies in many communities on the east coast and
in the North.

The shipping industry is a key transportation mechanism
in Canada and offers important social and economic benefits to Canadians.
In the area of shipping, Canada harmonizes marine safety and environmental
policies with international maritime law, and is a major supporter of
the work of the International Maritime Organization.

Canada also has an important and innovative shipbuilding and
industrial marine industry that is a critical component of the
local economy of many coastal communities and, as well, provides industrial
benefits for industries across Canada. The offshore oil and gas
industry, which has continued to grow since early exploration in the 1960s,
is generating increasing demands for vessels of all types, and for equipment
related to both exploration and development. In addition, important Canadian
service industries, such as sea-bed mapping, marine
communications and data management, have economic
and knowledge potential with the added benefit of a contribution to improved
oceans management. Such industrial and knowledge management benefits underscore
the necessity for an integrated approach and the collaborative arrangements
set out in Canada's Oceans Strategy.

Many coastal communities in Canada, from major cities to small villages,
are increasingly turning to their coastal areas to support economic opportunity.
Opportunities range from small eco-tourism operations
to major cruise-ships and waterfront developments.
Canada's Oceans Strategy supports increased economic opportunities
and commits to cooperation that supports its principles and objectives.

The Strategy also recognizes that all sustainable economic
activities depend on the provision of a safe and secure operating marine
environment. Without peace and security in Canadian ocean areas of jurisdiction,
the wealth-generating opportunities presented by the oceans will not be
realized by present and future generations.

Supporting sustainable economic opportunities is not without
challenges. For example, conflicts are becoming more common over the most
effective and sound uses of ocean space, most particularly in the near-shore.
In addition, the cumulative effects of many stresses are not always considered
and are difficult to assess. There is also an added challenge of understanding
the dynamics of marine ecosystems and predicting future conditions. These
challenges reinforce the need for the principles of integrated management,
sustainable development, and the precautionary approach to support the
sustainable economic opportunity objective. Costs of not implementing
an oceans strategy include increased conflicts and competition for ocean
space, lost economic opportunities and continued environmental degradation.

International Leadership

The third policy objective is International Leadership. Oceans,
by their very nature, demand international management. International Leadership
is about advancing Canadian and global ocean-related interests broadly
and proactively. By influencing international priorities, decisions and
processes, Canada can help ensure its sovereignty and security, sustainable
ocean resources, and support social and economic interests. Canada's
strong history of assisting other nations, particularly developing nations,
in the sustainable development of their oceans will continue.

Several federal departments have international activities concerning
oceans. It is recognized that no single department has the mandate, capacity
or resources to implement all of the international oceans commitments.
A high degree of consistency is required in order to maximize the returns
from investments in international activities. A common understanding and
consensus on international oceans priorities is necessary among federal
government departments in order to advance a coherent international oceans
strategy. The challenge ahead is to be more co-ordinated, better prepared
and capable of responding to the many international oceans issues that
demand immediate attention.

The United Nations Fisheries Agreement (UNFA) has emerged as
a significant international agreement to complement the United Nations
Convention on the Law of the Sea (UNCLOS). UNFA specifically addresses
the management and conservation of straddling stocks (those species that
occur both within the exclusive economic zone of a coastal state and in
the adjacent high seas), as well as highly migratory fish stocks on the
high seas. Canada has ratified UNFA and intends to ratify UNCLOS once
an effective UNFA enforcement regime has been established.

There are a number of other international legal instruments, institutions,
processes and initiatives dealing with the full range of ocean issues
that define the international environmental agenda. For example, Canada
is an active participant in the development of a new global regime for
the protection of underwater cultural heritage, an active supporter and
participant in the United Nations Informal Consultative Process on Oceans
and Law of the Sea, and signatory to a number of International Maritime
Organization conventions. In addition, Canada is an active participant
in a number of international fisheries and oceans resource management
organizations including the North Atlantic Fisheries Organization (NAFO),
the International Commission for the Conservation of Atlantic Tunas (ICCAT),
the North Atlantic Salmon Commission (NASCO), the North Pacific Anadromous
Fisheries Commission (NPAFC), and the North East Atlantic Fisheries Commission
(NEAFC), among others. Continuing participation in these fora will assist
in advancing ways of strengthening the effective global governance of
the oceans.

The "Earth Summit" of 1992 (the United Nations Conference on Environment
and Development) produced Agenda 21, the global blueprint for guiding the management
of the environment and development. Canada has been working with other nations
to fulfil the commitments of Agenda 21, and supporting international institutional
arrangements and initiatives to meet its commitments to sustainable development
goals. Chapter 17 of Agenda 21 is specifically devoted to oceans, and outlines
principles and objectives for oceans management. The Oceans Act and
Canada's Oceans Strategy represent a concerted effort to implement
the Agenda 21 principles of sustainability, integrated management, and precaution.
As such, the Strategy is a significant tool for addressing Canada's
international sustainable development commitments.

The Oceans Act and Strategy will be presented to the
international community at important fora, such as the World Summit on
Sustainable Development, as a framework for integrated, horizontal ocean
governance. This is just one way in which Canada will continue to ensure
that oceans governance remains a focal point in global sustainable development
discussions.

In the international context, Canada's Oceans Strategy supports
and promotes effective governance and regulation, including the exercise
of national sovereignty and security. The maintenance and preservation
of sovereignty over national ocean space is recognized as a fundamental
right in international law and is a priority for Canada. Within our maritime
zones, a coordinated system of surveillance and monitoring ensures the
Canada is cognizant of the maritime activities in progress. Strongly associated
with maritime surveillance is the enforcement of national and international
law within Canadian maritime areas of jurisdiction. Enforcement is fundamental
to the protection of our sovereign rights and to the preservation of maritime
order and security. The Oceans Act recognizes Canada's
maritime jurisdiction through the definition of baselines, internal waters,
the twelve nautical mile territorial sea, the twenty-four nautical mile
contiguous zone, the two hundred nautical mile exclusive economic zone,
and continental shelf in accordance with the 1982 Law of the Sea Convention.
In particular, the Act confirms the authority for the enforcement
of a federal law that is a customs, fiscal, immigration or sanitary law
within the contiguous zone. In addition, the Act grants authority
to prevent entry into Canada, powers of arrest and search and seizure.
A comprehensive national and international legal framework supports this
requirement, as well as effective intelligence and enforcement capabilities.

It is important to highlight that a critical goal of this Strategy
is the ability to ensure the safety and security of shipping and life
at sea. Achieving this goal involves prevention through the prediction
of dangerous conditions, the maintenance of safe and secure waterways,
and the enforcement of Canadian sovereignty, and the capacity for emergency
response that serves people, property and vessels in distress.

Canada's Oceans Strategy will respond to the challenge of providing
the improved co-ordination and increased capabilities needed to address
immediate and future international oceans issues.

Oceans Governance

Canada's Oceans Strategy in general, and oceans governance
in particular, is much more than a federal government responsibility.
It is a collective responsibility shared by all.

Accordingly, oceans governance under the Strategy has core
commitments to:

work collaboratively within the federal government, and among levels
of government;

share responsibility for achieving common objectives; and

engage Canadians in oceans-related decisions in which they have a
stake.

Under this Strategy, oceans governance will advance in three specific
areas. First, the federal government will develop, support and promote
activities to establish institutional governance mechanisms
to enhance coordinated, collaborative decision-making across the federal
government and with other levels of government. The Strategy
proposes to use new and existing mechanisms such as committees, management
boards and information sharing to promote coordination in ocean management.

Second, the Strategy seeks to implement a program of Integrated
Management planning to better engage partners in the planning
and managing of ocean activities. As the cornerstone of the oceans governance
approach, Integrated Management establishes advisory bodies that consider
both the conservation and protection of ecosystems, while at the same
time providing opportunities for creating wealth in oceans-related economies
and communities. It brings together the environmental, economic and social
considerations by planning for sustainable use.

Integrated Management involves comprehensive planning and managing of
human activities to minimize the conflict among users. It also involves
a collaborative approach and a flexible and transparent planning process
that respects existing divisions of constitutional and departmental authority
and does not abrogate or derogate from any existing Aboriginal or treaty
rights.

The governance model proposed for Integrated Management is one of collaboration.
It involves ocean management decisions based on shared information, on
consultation with stakeholders, and on their advisory or management participation
in the planning process. It is also based on institutional arrangements
that bring together all stakeholders. Participants taking an active part
in designing, implementing and monitoring the effectiveness of coastal
and ocean management plans, and partners that enter into agreements on
ocean management plans with specific responsibilities, powers and obligations.
It is also recognized that in specific cases, Integrated Management and
planning may be achieved through co-management.

The Framework proposes that an Integrated Management body will be composed
of both governmental and non-governmental representatives with interests
in a given ocean space. In coastal and ocean areas with relatively light
levels of human use and impact, Integrated Management bodies may focus
more on informing and consulting with local interests. In these circumstances,
the Integrated Management body may mostly serve to facilitate information
sharing.

As there is an increase in human activities and pressures on the marine
environment, other arrangements will balance coastal and ocean uses with
maximum social and economic benefits, while not exceeding ecological thresholds.
In these circumstances, substantial effort will be directed towards maximizing
participation of all interests and establishing an Integrated Management
body whose role will be to provide decision makers with advice and also
to assume part of the responsibility for implementation of the approved
management plan.

Finally, the Strategy responds to the desire of Canadians to
be engaged in ocean management activities by promoting stewardship
and public awareness. Oceans stewardship means acting responsibly
to conserve the oceans and their resources for present and future generations.
Through stewardship initiatives, the government can encourage Canadians
to volunteer and actively participate in the caring for ocean resources
in meaningful and positive ways. Citizens also want to be engaged in decisions
that affect them, and look for support for stewardship projects.

Canada's Oceans Strategy builds on an existing foundation of
stewardship and public awareness activities and will continue to develop
and promote national initiatives in these areas. This active participation
is encouraged through the Integrated Management planning process, but
also through more specific activities. Stewardship initiatives under the
Strategy will be co-ordinated with others such as the National
Stewardship Initiative and the Natural Legacy Agenda. As well, oceans
stewardship initiatives are important for supporting Canada's international
commitments under Chapter 36 of Agenda 21.

Industry is also interested in public/private sector partnerships that
contribute to sustainable ocean use. Government roles in this relationship
are to enable and encourage the public and private sectors to participate
as completely as possible in helping to support sustainable ocean use.